Sigurnosna Politika Na Balkanu Albanija

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Email: ofice@bezbednost.org
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Security Policies in the

Western
Balkans:
Albania
Authors: Enri Hide, Geron
Kamberi
Book: Security Policies in the Western
Balkans
Editors: Miroslav Hadi, Milorad Timoti and Predrag
Petrovi
The online version of this article can be

found at:
http://www.bezbednost.org/publika
cije
Publisher: Belgrade Centre for Security Policy,

2010.
Citation: Enri Hide, Geron Kamberi. 2010. Security Policies in

the Western Balkans: Albania. In: Miroslav Hadi, Milorad
and Predrag Petrovi, eds. Security Policies in the

Western Balkans. Belgrade: Belgrade Centre for Security Policy,
pp. 9-32.
Timoti
Security Policies in the Western Balkans
Albania
Enri Hide and Geron Kamberi
Strategic
Context
Documents
Challenges the Republic of Albania is facing in the process of

developing national security and defense strategies are not an
exception, taking into consideration the answers that these
strategies try to give to the role the Albanian state might have in
the international system, to the threats and security risks as well
as to responsible actors.After 1990, Albania found itself facing a
new security environment, including new geopolitical situation in
the Balkan region. The concept of national security, which until
the 90s had been based on self-isolation, popular self-defense
and the territorial distribution of all kinds of armed forces, was
sub- sequently followed by the concept of security as an
interdependent issue, ema- nating from the political and military
cooperation with the structures of collective defense, such as
NATO, as well as international organizations focused on the internal political and institutional stability, such as the OSCE.
During 1992-1997 every Albanian government, the political elite
and, more generally, the public opinion, sought to redefine their
perception either of domestic security concerns, or of regional and
international threats, based on the afore- mentioned instruments
and orientations. Therefore, over this period, the context on which
every strategic concept and document of security and defense
was based, could be described in terms of finding new directions
and recognizing threats and opportunities derived from domestic,
regional and/or international security environment. But the
troublesome year of 1997, and the following two years of domestic
instability and regional conflicts, culminating with the NATOs
intervention in Kosovo crisis, changed the public perception about
threats, and created the necessary institutional framework to deal
with drafting and further approval processes of security and
defense strategic documents. In 1998, upon the adoption of the
new Albanian Constitution, the institutional structure of national
security policy found its foothold in the socalled three pillars
approach, discussed elsewhere in this paper.
The idea of development and approval of strategic documents
related to security and defense policies was repeatedly
emphasized in the first half of 2000. The period preceding 2000,
in which the economic and political transition of Albania, after the
fall of communism took place, could be divided into two phases.
The first phase (1992-1997) coincided with the ruling period of a
right-wing coalition led by the Democratic Party. This period
ended with the violent riots that followed the 1997 collapse of
pyramid schemes, leading, to a certain extent, to the failure of
existing state security policies. Until 2000 the Albanian Parliament

didnt pass any strategic document on defense and security
issues. This was linked with a
top-down approach, whose prevailing idea was that the state still
had its primary role in security matters.
Such an approach was applied to the first series of strategic

documents regarding security and defense approved during 2000.
This period coincides with the second transition (1997-2005),
when Albania was governed by a left-wing coalition, led by the
Socialist Party. Due to the total collapse of the military and
security structures that came as a result of the riots in 1997, the
international community began providing a long-term assistance
to the Albanian government. After the so-called security
emergency period (1997-2000) Albanian government, mainly
following the international community recommendations, began
drafting the first strategic documents that would enable it to
further respond to the security and defense challenges. To some
extent, the context of these strategic documents met the
willingness of Albanian government to display its improved
performance in security, as well as the conditionality approach of
the international community
- to build a more comprehensive framework of security and
defense policy in the country. In this sense, the process of drafting
and endorsing these documents mostly followed a security
agenda, which was mainly determined by the international
actors. On the other hand, this process continued to follow the
top- down approach, since the state retained it ownership over
the defense and security.
Albanian
Framework
Strategic
Title of the strategy

1. Security Strategy Document of the Republic of
Albania
2. Defence Policy Document of the Republic of
Albania
3. Military Strategy of the Republic of Albania
4. Strategy of the Ministry of Defence Sector 20072013
5. National Strategy on Integrated Border Management Action Plan
6. National Strategy on Public Order Sector and
State Police and its National Action Plan
7. National Action Plan for the Fight against Trafficking in Vehicles Motor
8. Strategy to Fight Organized Crime, Trafficking
and Terrorism
Adopted
dat
2000
Amendme
nt
review
Yes, 2004
2000
Yes, 2007
2002
Yes, 2005
2007
No
2007
No
2007
No
2008
No
2008
No
Table 1: Strategic documents of

Albania
The first documents regarding national security and defense

strategies were designed in 2000 and followed by the revised
versions in 2002, 2004, 2005 and
2007.1 The drafting period coincides with a relative stability in the
economic and political spheres, as Albania had exceeded the
difficult year of 1997, the political
As mentioned above the first document belongs to year 2000 through Law No.
8572, dated
27.01.2000 On approval of the Security Strategy Document of the Republic of
Albania (Official Journal No. 3, Year 2000, page 43) and was reviewed after four years by Law No. 9322,
dated 25.11.2004
On approval of the National Security Strategy of the Republic of Albania (Official
Journal No. 98, Year
2004, page 6696)
10

unrest of 1998, and the Kosovo crisis of 1999. In this sense, the
challenges, risks and threats that the Albanian government
established in these documents took into account new local and
regional context.2 Generally, the approval and review phase went
through a process closely associated exclusively with government
security agencies. Although legislation provides that such strategic
documents should be reviewed every 4 years, 2 of them (the ones
passed in 2000 and 2004) were adopted only by teams of experts
from the Ministry of Defense, the Ministry of Interior, and Secret
Services and particularly by the National Security Council (NSC)
an advisory body for security issues attached to the President.
Due to the fact that local expertise was still rather limited in terms
of strategic planning in security and defense issues, the foreign
experts affiliated to the Alba- nian security agencies had a crucial
role in drafting these documents. The differ- ence between
strategic documents related to the national security policies and
those related to defense and military lies particularly in the fact
that the latter were more concrete due to the Armed Forces
objective to enter NATO and to implement the Membership
Action Plan (MAP) adopted at the NATO Summit in
1999. However, it should be noted that the internal view of
security institutions experts (considered to be security
producers) prevails in the documents approved in the period
from 2000 to 2007 while the feedback from security consumers
(represented by community or special groups of interest) lacks.
It should be noted that Albanias efforts to build a new institutional
relationship with the EU through the Process of StabilizationAssociation (PSA) which took place in 1999, and NATO, through
the Membership Action Plan (MAP) adopted at the Istanbul
Summit in 1999, were also reflected in the above documents of
strategic and doctrinaire framework. In this way, the concept of
national security, presented in the relevant strategies, tried to
maintain a balanced relation between the challenges and
threats, as perceived by the Albanian state, and those perceived
by international institutions.
Strategic
Hierarchy
As already mentioned above, the first security and defense
strategies were approved in the same year: National Security
Strategy (NSS) adopted in early 2000, National Defense Strategy
(NDS) adopted later in 2000. The review process went through
different phases linked with the respective legislative provisions
(e.g. NSS should be reviewed every four years, while there is no
legal provision pertaining to NDS). On the other hand, the gap
between the review periods, somewhat greater in case of NDS
(2000, 2007), had been filled by the frequent approvals of
2
Regarding the adoption of the strategic framework of military doctrines they

follow a series of documents approved by the Albanian parliament such as Law
No. 8571, dated 27.01.2000 On approval of the Defence Policy Document of
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the Republic of Albania(Official Journal No. 3, Year 2000, page 19); Law No.
8930, dated 25.07.2002On approval of the Military Strategy of the Republic of
Albania(Official Journal No. 50, Year 2002, page 1459) Law No. 9419, dated 20/05 /
2005 On approval of the Military Strategy of the Republic of Albania (Official
Journal No. 46, Year2005, page 1653); Council of Minister Decision No. 763 dated
14.11.2007 On approval of the Strategy of
the
Ministry of Defence Sector 2007-2013 (Official Journal, No. 174, Year 2007, page
5332); Law No9858,
at 27/12/2007 The adoption of the Military Strategy of the Republic of Albania (Official
Journal No.
184, Year 2007, p 5801)
11
the National Military Strategy (NMS) (in 2002,

2005, and 2007).
It is worth mentioning that NSS (2000, 2004) set a general
framework for the subsequent development of NDS (2007) and
National Military Strategy (NMS) (2002,
2005, and 2007). This is because the last two strategies are
considered as parts of national security and it is mandatory for
them to rely on its basic concepts, as determined by NSS. Given its
specific goals and since it focuses on very important instruments
of national security (such as the armed forces) NMS (2002, 2005,
and
2007)
is
more
detailed.
However, due to considerable similarities between NDS (2007)
and NMS (2005,
2007) one can notice overlaps in certain issues and elements.
However, second
review of NSS (2008) hasnt been finished yet, although the
timeframe for its revision was clearly set by the respective legislation.The fulfillment
of this process
[i.e. the second review of NSS 2008] is very important, and
particularly necessary,
in order to reflect all changes occurring in the environment of
internal security
(particularly as the membership in NATO is now a new reality). It
also serves as a
framework for reviewing and adjusting the strategic documents of
NDS and NMS,
in consistency with the new commitments and obligations arising
from membership in NATO and with its new strategic
concept.
Key factors in passing
Strategic Documents
and
updating
Regarding local key factors which have influenced the process of

approving and updating the strategic documents a series of them
need to be mentioned, such as: a) the change in the Albanian
security environment, as well as the regional security
environment; 2) the pressure of international community for
developing comprehensive strategic security framework; 3)
membership in NATO and the EU perspective, or the so-called
Euro-Atlantic integration agenda (particularly NATO membership
through stages imposed by Membership Action Plan (MPA); and 4)
the legislation.
The change in security environment played a significant role in
developing a strategic doctrinaire framework. After Kosovos War,
Albania witnessed a different security situation. It was reflected
not only at a local level but at a regional one as well, where
initiatives such as the Stability Pact or the Stabilization and

Association Agreement encouraged Albanian government to
undertake the reassessment of the security and defense policies.
Meanwhile, due to the fragile political stability and the riots that
Albania had passed through immediately before that period
[during 97], the international community exerted a lot of pressure
influencing Albanias security and defense policies and providing
recommendations for development a well-defined strategic
framework. After 2001 parliamentary elections and the revival of
integration agenda for the Balkans, the Albanian government
declared as one of its main goals the advancement to NATO and
the EU integration processes. Therefore, the perspective of NATO
and EU membership acted as an impetus for the government.
This is how the period of security and doctrinaire framework of
Albania coincides with the beginning of Stabilization and
Association Process (SAP) and the Membership Action Plan (MAP)
for NATO Membership. Therefore, both strate12

gies consider the prospective membership into NATO and EU as a
main factor for accommodating the country into a safe and secure
environment.
Such incentives allowed opportunity to Albania not only to
represent the intended objectives and targeted performance of
security institutions, but also to further testify through the
strategic doctrine framework that was a factor of peace and
stability in the Balkans. On the other hand, through the goals,
human resources and skills put into strategic documents, it could
demonstrate its willingness and readiness to cooperate with
international security institutions, especially those of collective
defense. Its commitment to approve such strategic documents,
Albania also wanted to show that it is transformed from a security
consumer to security producer country. However, NATO and
the EU defined different approaches regarding Albanias
integration. Since EU membership process goes through a tai- lor
made approach of SAP, the NATO integration process adopted
an approach supported directly by the USA through Adriatic Chart
3, which significantly accelerated the Albanias membership.3
On the other hand, the legal framework adopted by the Albanian
government, obliges Albanian institutions to periodically review
these strategic documents. While the national security document
has so far been reviewed only twice, defense policy and military
strategy have gone through a more intense phase of review. For
instance, so far the Albanian government and parliament have
approved: NSS (National Security Strategy) (2000, 2004), NDS
(National Defense Strategy) (2000,
2007), and NMS (National Military Strategy) (2002, 2005, and
2007). As mentioned above, the factors which have contributed to
a more frequent review of military strategy have particularly been
associated with the steps undertaken to speed up the armed
forces reforms to join NATO.
Another key factor that has influenced the strategic and
doctrinaire framework review is related to the regional
cooperation. Considering that regional cooperation was defined
by Albania as an element that will boost and strengthen regional
security, the country was involved in a series of initiatives with a
regional char- acter in this field.4 Although the Stability Pact (later
turned into the Regional Co- operation Council) failed to fully
justify the high expectations of countries in the region to transform
itself into the Marshall Plan for the Balkans, it tried to provide a
model of regional cooperation despite the common perceived
threats, such as illegal trafficking, border control or organized
crime.5
3
Declaration of Albanian Parliament, 18/03/2004, On the resolution of

Congress, 04/01/2004, for membership of the 3 Adriatic Charter countries in
NATO, before 2007 (Official Journal No. 23, Year
2004, Page 1189); Elira Hroni Adriatic Charter 3- A development and influencing
model in Western Balkans CSHTJE T SIGURIS/SECURITY ISSUES, Quarterly
Journal, No 13, Published by IDM (Institute for Democracy and Mediation), Tiran,
2009, pg. 85-102.
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Law No. 8541, dated 21.10.1999 On ratification of the SECI (Southeastern

Cooperation Initiative) Agreement on cooperation for the prevention and fight
against cross-border crime (Official Journal
No. 31, Year 1999, Page 1175); Law No. 8639, dated 13.07.2000 On ratification of
the Charter for the organization and functioning of Regional Center of SECI (SECI
Center) for combating trans-border crime (Official Journal No. 22, Year 2000, Page
1078 )
5
Florina Christiana ( Cris) Matei Combating against terrorism and organized

crime :Common approach of Southeast Europe CSHTJE T SIGURIS/SECURITY
ISSUES, Quarterly Journal ,, Nr 14 , Pub- lished by IDM (Institute for Democracy
and Mediation) , Tiran, 2009, pg 84-111
13
Within this framework, NSS (National Security Strategy) (2000,

2004), NDS (Na- tional Defense Strategy) (2000, 2007), and NMS
(National Military Strategy) (2002,
2005, 2007) of Albania also reflected the revival of Euro-Atlantic
and regional integration process in the Balkans, followed by a
series of important initiatives such as the ones mentioned above,
which were among the key elements of security and doctrinaire
framework objectives.6 Given the fact that after 1999, EU
undertook a series of actions to create a security zone of justice
within member-countries, it adopted a security driven approach
in relation to the Western Balkan countries which included
Albania.7 For this reason, the EU financial instrument, known as
CARDS (2000-2006), spent approximately 60% on the security
sector reform in Albania, including police, integrated border
management, prisons, judiciary, and fight against organized
crime.8
The interdependence characterizing the EU approach prompted
Albanian government to implement all legal and institutional
obligations. Within this framework, the National Plan for
Implementation of SAA (2007-2013) is still considered important
key factor containing specific obligations in the field of legislation
and structural adjustments to security sector, and proves the
interlinks between strategic documents and integration process.9
Institutions
tasked
Strategic Documents
with
preparations
of
Strategic documents on security and defense were supported by a

previously approved legal framework. They specified the tasks
and responsibilities of state security institutions. Since 2000, when
the first strategy on national security was initiated, government
efforts in this area were mostly encouraged by the sug- gestions
and recommendations of international community. Given the fact
that issues of security and defense still be considered an exclusive
area of central government, along with drafting and approving
processes, the Albanian government pursued a top-down
approach which implies that experts of state institutions and those
of international agencies, who provided an intensive technical
assistance in security sector in Albania since 1997, held the upper
hand. This is the manner in which the strategic documents,
adopted and reviewed from 2000 to 2007, failed to follow the path
of consultation and involvement of other actors. What contributed to this is the legacy from past times linked to the perception
of security as an element rooted only in state institutions.
6
Amadeo Watkins NATO and Balkans:model for a wider integration CSHTJE T

SIGURIS /SECURITY ISSUES, Quarterly Journal, No 5, IDM (Institute for Democracy
and Mediation), Tiran, 2007, pg 41-51
7
Barry J. Ryan Development of EU security agenda: Security of Albania and

Montenegro, CSHTJE T SIGURIS/SECURITY ISSUES, Quarterly Journal, No 14,
IDM (Institute for Democracy and Mediation), Tiran, 2009, pg 30-61
8
Jonida Hoxha Organized crime in Balkan as a serious threat to EU security

CSHTJE T SIGURIS/SE- CURITY ISSUES, Quarterly Journal, No 14, IDM (Institute
for Democracy and Mediation), Tiran, 2009, pg 122- 136.

9
Decision of Council of Ministers No. 317 dated 13.05.2005 On approval of the

National Plan for the Approximation of the domestic legislation with that of the
EUs and the implementation of commitments deriving from the SAA (Official
Journal No. 35, Year 2005, Page 1288); Decision of Council of Ministers No. 463:
dated 05.07.2006 On approval of the National Plan for Implementation of the
Stabilization and Association Agreement (Official Journal No. 80, Year 2006,
Page 23007)
14

The role of civil society in this process remained vague. Besides
two or three thinktanks with a sort of experience and expertise in
security matters, the rest were not yet able to provide any added
value in this process.10 At the same time, within the Albanian
security institutions dominated a general idea that Albanian NGOs
lacked the necessary capacities, especially in terms of strategic
aspects of handling issues related to security and defense.
However, the civil societys role in consolidating the national
security policies has been widely recognized by aca- demics and
policy-makers.11 So, the fact that during communism there were
no independent civil society organizations12 may be considered as
one variable that led to poor democratic standards and
authoritarianism in the early years of democracy in Albania.
Despite such legacy, during the 90s civil society organizations
and particularly the media became increasingly important as
pressure groups; however not assuming the role of stakeholders of
the democratic process.13
However, despite the 1998 Constitutional liberal framework which
provided for freedom of association for any lawful purpose, the
legal framework remained incomplete. In spite of contributing to
the expansion of market and increasing the number of donors, the
role of civil society in security sector reform in the last 10 years
has been vague and insignificant. This is regardless of the fact that
vast majority of common civil society structures have already
been present in the country (such as non-governmental
organizations, trade unions, professional associa- tions, thinktanks, research institutes etc). However, they are too weak and
need to develop further in order to efficiently contribute to
Albanias
security
sector development. Non-governmental
organizations, regardless steady progress concerning the
involvement in security sector reform, lack authority as
independent actors14. In addition, civic engagement in security
issues remains low.
On the other hand Albania has only a limited number of
influential NGOs and policy institutes. It is the duty of civil society
to take greater responsibility for de- manding progress and holding
the government accountable as well as putting pressure to
become a part in the process of consultations and drafting
security
10
Since its establishment in 1999, IDM (Institute for Democracy and Mediation) is
focused primarily on security-related issues, especially in improving the
performance of police, community policing, reform of intelligence services etc.
Meanwhile since the adoption of the Adriatic 3 Charter on 4 May 2003 and till to
Albanias full membership in NATO on 2 April 2009 it took a series of activities and
initiatives to better explain the importance, rights, duties and costs stemming out
of this membership for Albania. For more details, see:http://www.idmalbania.org;
AIIS (New Institute for International Studies) has
been more focused on the issues related to regional security, regional cooperation initiatives
as well
as international security environment. Recently, a group of its associate researchers have
conducted a
comprehensive research paper on security sector reform in Albania. For more details see:
http://www.
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aiis.org
11
Caparini. Marina, Civil Society and Democratic Oversight of the Security Sector: A
Preliminary Investigation. Working Paper - No. 132, Geneva, January 2004
12
Vickers. Miranda & Pettifer. James, Albania: From Anarchy to a Balkan

Identity, Hurst & Company, London 1997, p:12
13
Henri Cili, Security and Defence Civil Society and the Media, in Fluri et al
(eds.), Defence and Security Sector Governance and Reform in South East
Europe: Insights and Perspectives, Volume 1; Albania; Bulgaria; Croatia; A SelfAssessment Study
14
European Commission, Albania stabilization report 2003,

Brussels 26. 3. 2003
http://ec.europa.eu/enlargement/pdf/albania/com03_339_en.pdf
15
policies. There have been little or no expectations in the last

years from citizens toward these organizations. This can be due to
the fact that the civil society has little influence in legislative or
other activity related to the government.15 As such, with regard to
national policy formulation, coordination between government,
parliament and civil society remains frail. The inter-ministerial
consultations with civil society actors on draft laws work poorly in
practice.16
The state has often hindered the role of civil society and,
conversely, civil society (CS) has turned into an obedient partner,
severely undermining its role in a democratic society.17
Participation of research institutes in the area of security reform
policies has been rather limited, except for few cases such as: the
involvement of civil society and other independent actors in the
implementation of the Commu- nity Policing Strategy in Albania.
Parliamentary expertise in specific matters related to the
security sector has been provided mainly by experts from
governmental institutions. The government, a product of political
majority which holds power in parliament, drafts defense and
security policies, obtains the approval from the majority of the
parliament, and implements these policies through its government structures avoiding the independent actors. Such a system
establishes a closed institutional framework, where the only
opposing voice comes from the opposition in parliament, therefore
undermining the role of civil society and, sometimes, even media.18
As such, the laws and strategic documents are drafted
predominantly by the executive branch itself and represented to
the parliament for approval without any prior consultations with
CS.19
As we have noted above, the role of international institutions like
the OSCE, the UNDP, PAMECA (Police Assistance Mission of
European Community in Albania), NATO (especially through
Liaison Office in Tirana) was very important in the preparation
stage of these strategic documents. It should be emphasized that
since
1997, apart from several occasions,
the abovementioned
institutions had been
15
Arbana. Lora, Understanding Defence and Security In Correlation to Civil

Society and Media, Alba- nian Institute for International Studies, 2003,
http://docs.google.com/gview?
a=v&q=cache:IrHWUcCdeiwJ:https://intra.css.ethz.ch/civsoc/ev_
belgrade_031114Arbana.pdf+%22civil+society%22+%22security+sector
%22+albania&hl=en, Accessed February 2010
16
European Commission, Albania, progress report 2008, Brussels 05.11.2008,

http://www.delalb.ec.europa.eu/files/albania_progress_report_2008.pdf,
Accessed February 2010
17
Cili. Henri, Security and Defence Civil Society and the Media in Trapans. J &
Fluri. H, Defence and Security Sector Governance and Reform in South East
Europe, Vol.1 & II, DCAF & Center for Civil-Mili- tary Relations, 2003,
http://www.dcaf.ch/publications/kms/details.cfm?
lng=en&id=21335&nav1=4, Accessed February 2010.
18
Cili. Henri, Security and Defence Civil Society and the Media in Trapans et
al , Defence and Secu- rity Sector Governance and Reform in South East Europe,
Vol.1 & II, DCAF & Center for Civil-Military Relations, 2003,
http://www.dcaf.ch/publications/kms/details.cfm?
lng=en&id=21335&nav1=4, Accessed February 2010.
19
Arbana. Lora, Understanding Defense and Security In Correlation to Civil

Society and Media, Alba- nian Institute for International Studies, 2003,
http://docs.google.com/gview?
a=v&q=cache:IrHWUcCdeiwJ:https://intra.css.ethz.ch/civsoc/ev_
belgrade_031114Arbana.pdf+%22civil+society%22+%22security+sector
%22+albania&hl=en, Accessed February 2010
16

present in a variety of security crises occurring in Albania (i.e.
the disorders of
1997, the political unrest that accompanied the 1998
assassination of the former
opposition deputy Azem Hajdari or the 1999 refugee crisis when
refugees were
violently deported from the conflict in Kosovo ) and thus were
seeking a clear
strategic framework that would define the roles, resources and
tools to ensure
security
in
the
country.
Regarding the role of media in this process, it has been marked by
marginaliza- tion, regardless of its formal weight as the fourth
power within a democratic society. Such media apathy was
related to the fact that the drafting and approval of these
documents not only turned over the walls of state security
institutions offices, but also because the media has not yet
generated genuine analysts and journalist on security and defense
issues. Almost all strategic documents adopted and reviewed from
2000 to 2007 were not subject of any significant analysis in the
print or electronic media but were simply considered as routine
news at the time of their approval in the Parliament.
On the other hand, the general public failed to perceive its
importance and its role as one of the main consumers of security
throughout this process. In this regard, many of these strategic
documents bear security features which expose mostly the view
of security producers rather than public perceptions and
expectations of public pertaining to the national security
environment. Due to the weakness of media and the lack of
NGOs capacity, the general public, not only as a security
consumer but also as a taxpayer entity as well, remains still poorly
informed, especially about the financial costs entangled in the
strategic doctrinaire framework. Even the specialized periodical
publications on security and defense strategic issues have been
almost completely absent or very rare. The recent initiatives to
fill this gap include an attempt to make the process more
transparent and bring different views by various groups of
interest, especially from civil society.20
On the other hand, regardless of the large number of public and
private univer- sities in the country, the academic, scientific and
research community was not properly represented and remained
outside the process of drafting and reviewing the strategic
documents. This happened not only because of the limited expertise (excluding specialized higher education institutions on
security and defense issues such as Police and Military Academy),
but also due to the lack of a more inclusive process on this issue.
Meanwhile, the Albanian Parliament also entered a routine
procedure for approval strategic documents without any hearing
ses- sions or open debate with particular groups of interest or
representatives of civil society.
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In general, the process of drafting these documents remained an

exercise of state security institutions, without inclusion and
participation of non-military stakeholders interested in security
and defense strategic issues.
20
Only in February 2006, began publishing a quarterly magazine for security

issues called Security Issues. It is published by the IDM and is the only periodical
publication of a think-tank that addresses in particular issues related to practical
aspects of security and defence strategies not only for Albania but beyond it.For
more details, see:http://www.idmalbania/security_issues
17
Responsibilities in the process of preparation and

passing strategic documents
It should be noted that in the aftermath of the so-called first
transition (1992-97) Albania continued to maintain its previous
institutional security structures such as the Defense Council, which
was seriously challenged by the uncommon situation of civil
unrests that accompanied the collapse of pyramid schemes. Lack
of a genuine and crosscutting concept of national security as well
as the lack of experience, the weakness and existing
politicization of security institutions brought about a security
vacuum which was significant during the riots of 1997.21 After the
new Albanian Constitution entered into force in 1998, the
institutional structure of national security policy was based on
the so-called three pillars approach, including the Committee on
National Security Policy (headed by and under the control of the
Albanian Government), the National Security Council (headed by
and under the control of the Albanian President), and the
Parliamentary Commit- tee of Security (Parliament). These are the
key internal actors which initiate and implement the strategic
doctrinaire framework of Albania.
In accordance with the legal framework adopted by the Albanian
Parliament, the responsibility for passing security and defense
strategic documents shall be per- formed in the following
hierarchical order: a) Parliament; b) President of Republic; c)
Council of Ministers; d) Prime Minister; e) Minister of Defense; f )
General Staff; g) Chief of General Staff; h) Commanders of Armed
Forces (land, sea and air).22
In this context, Parliaments role is to approve laws on: a) strategic
documents of Security and Defense Policy of the Republic of
Albania; b) defense budget; and the number of Armed Forces of
the Republic of Albania and their mission. Also, it provides the
oversight activities over the Armed Forces by defining the powers and authority of command and direction of the Armed Forces
for peacetime, emergency and wartime. A lot of these
responsibilities are carried out by the Par- liamentary Committee
of Security, which handles large part of the control and
accountability process on security institutions and armed forces.
21
This approach is reflected in a set of rules that determine the progress of this
structure such as Law No. 7528, dated 11.12.1991 On the functions of the
Council of Defence and the General Commander of Armed Forces (Official Journal
No. 10 , 1991, Page 424); Decision of the Assembly No. 300, dated
02.03.1997 On the appointment of special envoy from the Council of Defence
(Official Journal No.
2, Year 1997, Page 47) Decision of the Assembly No. 319, dated 08.05.1997
On establishment of
the Council of Defence of the Republic of Albania (Official Journal No. 11, 1997,
Page 291); Assembly
Resolution No. 359 dated 27.04.1998 For a change in Decision No. 319, dated
05.08.1997 On establishment of the Defence Council of the Republic of Albania (Official Journal No.
10, 1998, Page 359);

Constitutional Court decision No. 77 dated 31.12.1998 The object of the request
by the President of
the Republic: Interpretation Article 178, paragraph 1 of the Constitution regarding
the implementation
of Law No. 7528, dated 11.12.1991 On the functions of the Council of Defence
and the General Commander of Armed Forces (Official Journal No. 3, Year
1999, Page 4 )
22
Law No. 8671 dated 26.10.2000 On the powers and authorities of

commanding and the strategic direction of the Armed Forces of the Republic of Albania (Official Journal No.
37,Year 2000, Page
1786);Law No. 9194, dated 19/02/2004 For some additions and amendments to
Law No. 8671 dated
26.10.2000 On the powers of authorities of commanding and the strategic
direction of Armed Forces
(Gazette No. 16, Year 2004,
Page 785)
18

Another important institutional stakeholder, with significant role in
monitoring and implementing the strategic doctrinaire framework,
is the President. Pursuant to the Albanias Constitution and laws,
the President is the Armed Forces Com- mander General. In
peacetime the President exercises the leadership of Armed Forces
through Prime Minister and the Minister of Defense, while in
wartime s/ he leads them directly or through the Armed Forces
Commander.23 The President as Commander General of Armed
Forces has full authority and control over the direction of Armed
Forces as well as gives approvals for tasks and responsibilities: a)
the proposal from the Minister of Defense on the organizational
structure of the Armed Forces; b) the action plan of the Armed
Forces in peacetime and establishing measures in case of
emergency c) the distribution of the Armed Forces in peacetime
and for mobilization; d) set benchmarks of readiness on reserve
military units.
On the other hand, the National Security Council constitutes an
important structure attached to the President of Republic. It
provides him with the assistance regarding issues on security
and strategic doctrinaire framework. The National Se- curity
Council is an advisory body to the President and it assists him in:
a) matters of security and defense of the country; b) discusses and
gives opinions on security and defense policy.24 The members of
the National Security Council are as follows: The Speaker of the
Parliament, the Prime Minister, the Minister of Foreign Afairs,
Defense, Public Order, Finance, Transport, the Chief of Staf
General and Director of National Intelligence Service. Depending
of the issues discussed at the meeting of NCS, the President, may
invite additional persons as permanent chairmen of parliamentary
committees, ministers, heads of central state institutions, etc.
Pursuant to the Constitution and laws in place the executive
branch of government has a significant role to play in terms of
the drafting and implementation process of the strategic
doctrinaire framework. In this case, the role of Prime Min- ister and
Minister of Defense, as part of the government and civilian control
of armed forces, provides a series of commitment and
accountabilities. This is why Prime Minister exercising authority
over the Armed Forces , in peacetime is accountable to the
Parliament and the President. He coordinates and oversees the
activities of institutions that have obligations in compliance with
the law On approval of the security strategy document of the
Republic of Albania.
On the other hand, the Minister of Defense is accountable to the
Parliament, President and Prime Minister on defense policy
implementation. His responsibility includes the following tasks: a)
presenting defense policy documents and projects related to the
number, structure and organization of the Armed Forces to the
Council of Ministers; b) submitting (to the Council of Ministers) for
approval the Defenses annual budget; c) providing long-term
plans for development and modernization of the Armed Forces and
special programs in defense, seeking financial support; d)
approving allocation of defense budget.
A
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NI
23
Law No. 8467 dated 31.03.1999 On the powers of the President as Commander General of
the
Armed Forces and National Security Council (Official Journal No. 10, 1999, Page 311).
24
Law No. 8671 dated 26.10.2000 On the powers and authorities of commanding
and the strategic direction of the Armed Forces of the Republic of Albania (Official
Journal No. 37,Year 2000, Page 1786).
19
The Defense Policy Council has been established as an advisory

body under the umbrella of the Ministry of Defense. Its members
are: Deputy Minister of Defense, Chief of General Staff, Deputy
Chief of General Staff, commanders of land, navy and air force,
commander of Training and Doctrine, commander of Logistics Support, the Director of Legal Department, and other persons invited
by the Minis- ter.25
The military structures directly engaged in the implementation of
the strategic doctrinaire framework became increasingly important
given their new duties and responsibilities prescribed by the law.
Therefore, the General Staf constitutes the highest military
structure with unique command in the Armed Forces. It is responsible for creating a joint and unified military land, sea and air
force which should be able to fulfill its constitutional mission.26
General Staf acts as the headquarters of the unified land, navy
and air forces and is responsible for: a) joint preparation and
training of all three services ; b) facing threats or risks that might
endanger security in the country; c) planning and programming of
defense ; d) undertaking strategic assessment of threats or risks
and taking measures to tackle them.27
An important role is also played by the Chief of General Staff. He
is accountable to the President, Prime Minister and Minister of
Defense for military training and readiness of the Armed Forces as
well as management and organization of military and non
military actions. The Chief of Staf is the senior military adviser of
the President of Republic, the Prime Minister and Minister of
Defense. Indeed, he has the following duties and responsibilities:
a) approves the military doctrines of the land, sea and air armed
forces; b) approves the plans and actions of military units of the
three armed forces: land, sea and air for peacetime; d) displays
the structure, number and organization of the Armed Forces.
As we already mentioned above, the players to implement the
strategic and doctrinaire framework of Albania are determined by
the institutional hierarchy of national security in the country. Part
IV of the national security strategy (on the leadership of NSS of the
Republic of Albania) is referred to the constitutional ba- sis of
leadership represented by three main institutions: the
Parliamentary Com- mittee of Security, the National Security
Council of President, and the National Security Policy Committee
headed by the Prime Minister. This structure reflects the
constitutional model of the Republic of Albania as a parliamentary
Republic, but on the other hand it does not specify in details the
roles and responsibilities of other actors, especially the so-called
security executive institutions.28 In this sense, it determines only
the constitutional relations between these institutions where the
Parliament holds the highest authority, since constitutionally
Albania is a Parliamentary Republic; but there is no clear definition
for actors most responsible
25
26
Ibid.
The Decision of Constitutional Court No. 26, dated 24.04.2001 with subject:
Interpretation of clause 1 of Article 12 of the Constitution the Armed Forces
provide the countrys independence and territorial integrity and protect its
Constitutional order (Official Journal No. 20 , 2001, Page 629)
27
Ibid.
28
While the effort to change the content of the concept of security was also
reflected in the renaming of the Council of Defence in the National Security Council
and its functions .Also see the Law No. 8467, dated 31.03.1999 On the powers of
the President the Republic, as General Commander of the Armed Forces and
National Security Council (Official Journal No. 10, 1999, Page 311)
20

for its implementation. The fact that the Prime Minister initiates
every four year the review process of NSS (National Security
Strategy) implies somehow a greater role of the executive branch.
In this context, the most important issue these documents must
provide, apart from the means and ways of securing the nation, is
a clear and detailed response to the division of roles within the
hierarchy of the countrys security paradigm.
Internal coherence and
Strategic Framework
soundness
of
the
The set of documents which belongs to the strategic policies

concerning security, defense and military are, among others, one
of the indicators on how security sector aims to coordinate their
activities in the future. Given the fact that Albania is by its
Constitution a
parliamentary republic, the tasks and
responsibilities of the Albanian Parliament in the area of security
and defense are reflected in the democratic oversight and
accountability. On the other hand, taking into account the
hierarchical structure of security institutions, the government has
duty to implement the strategic doctrinaire framework through
relevant ministries and agencies.29
It should be stated that the division of tasks and roles between
the legislative and executive powers in the fields of security and
defense is already consolidated through a series of laws and
practices. Under the Constitution of the Republic of Albania,
Albanian Parliament is the highest legislative body from which all
other institutions derive their legitimacy. Therefore, in the case of
Albania, duties and functions assigned to the Parliament allow it to
exercise control and supervision on drafting strategic documents
and governments implementation process. However, Parliaments
role can be strengthened to ensure an effective oversight and
professional control over the processes of civilian control of army
and security structures as well as to guarantee a better
coordination and use of financial resources to the benefit of
national security. In this context, the Parliamentary Security
Committee could expand its expert advisory network not only with
the full-time professionals, but with the independent experts,
when dealing with issues related to the security and defense or
strategic doctrinaire framework.
Although it seemed that after 2000 and 2004 when the Republic of
Albania strategies of security had been adopted, much control
and operational lead was given to the parliament through
increasing the powers of its security and interior afairs
committee, the events after Grdec in 2008, which will become an
important landmark regarding security and strategic issues in
Albania, have shown that the government have gained control and
more power over fundamental security institutions. Such approach
raised concerns from Albanias Western security part- ners which
were indeed clearly reflected in the draft-law regarding some
changes with respect to the responsibilities of the intelligence
A
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services of Albania.
30
29
Law No. 8417 dated 10.21.1998 For the adoption of the Constitution of the Republic of
Albania (Office Journal No. 28, 1998, Page 1073)
30
See, for more, Albanian newspapers during February-April, 2010.
21
On the other hand, despite the fact that the current law clearly
defines the advisory role of the National Security Council
attached to the President of Republic, the existence of an InterMinisterial Committee for Security Afairs as an advisory body
close to the Prime Minister rather creates a hidden institutional
rivalry, than helps better coordination of the activities of state
security institutions. For this reason, the overall coordination and
cooperation of security institutions to ensure a comprehensive
strategic doctrinaire framework remains one of the primary tasks
of the state. The preparation of these strategic documents need
to
pass through a professional assessment of CRT process
(Challenges, Risks and Threats) which ensures as much as
possible a wider
participation across the institutions and
stakeholders assigned to implement it in practice.
It would be a sign of coherence if, in the process of preparing and
implementing these strategies, involvement from a range of
experts from various institutional actors becomes greater. It is
evident that there is a certain degree of soundness in the
structures of democratic security and defense forces oversight
(mainly in parliamentary and governmental structures) well as
certain involvement of the civil society in the processes of drafting
and implementing these strategies. This involvement is yet to be
improved and will be discussed below.
The Constitution has clearly defined roles and basic security
concepts of the country. They are founded on peace, good
neighborhood and active participation in collective defense
structure. So, these notions have paved the way to the general
principles which support the strategic doctrinaire framework.
However, the existing laws should provide more details
regarding the steps in the process of drafting and approving
strategic documents. Hence, it would be possible to enable
inclusion of many experts and NGO representatives thus not
leaving this process to the discretion of state security institutions.
In this way, the legitimacy of the process would be strengthened
and the necessary support from general public would be in place.
Risk
Analysis
Results
The national security and defense strategy documents should
ascertain that the core concept of security strategy is mainly
centered on respect of the rule of law and the integration
approach.31 National security and military strategies as well as the
defense policy documents have defined the challenges, threats
and risks following a top-down approach which implies that the
relevant security institutions were not receptive towards a more
comprehensive approach (i.e. to measure in advance the public
perception on threats and risks). As a result, the challenges,
threats and risks in these documents are ranked in three levels:
local, regional and
31
See Law No. 9322, dated 25.11.2004 On approval of the National Security
Strategy of the Republic of Albania (Official Journal No. 98,Year 2004, page 6697)
and Law No. 9858, at 27/12/2007 The adoption of the Military Strategy of the
Republic of Albania(Official Journal No. 184, Year 2007, page 5802)
22

global, lacking a clear prioritization and differentiation.32 Therefore,
in the case of NSS it was the criteria related to the local level
which was pursued rather than a comprehensive approach which
would seek to build on a detailed classification of these.
Security strategies and doctrinaire framework at local level
identify four catego- ries as threats and risks for Albania:
organized crime, terrorism, disasters and problems of transition.
In the case of organized crime, the term refers to various forms of
illegal trafficking, primarily drugs, human beings, conventional
weapon, etc. In the case of Albania, special emphasis has been
put on internal security, illegal migration, such as Albanian
immigrants in other countries or uncontrolled settle- ment of
population within the country. But one can also find in the NSS
vague and insufficiently elaborated notions perceived as risks
terms such as public opinion misinformation or insufficient
development of education, science and culture.
With respect to the threats and challenges in regional security, it
bears mentioning that national security strategy and military
strategy have been influenced by the historical heritage and geostrategic importance of the country as key factors in determining
the security environment. In this context, national security
document has clearly defined that the destabilization of the
region through revival of desire for fulfillment of exaggerated
nationalistic projects and development of trans-national ethnic
conflicts, represents a danger for the security of the Republic of
Albania.33
On the other hand, in both documents the policymakers
conviction is officially acknowledged - the neighbors are not the
major threat to regional security, it rather has an internal origin,
such as political instability, weak economy and organized crime.
In the case of Albania, the so-called Albanian national issue is
set among the highest priorities of the strategic security objectives
and suggested that the Albanian national issue is going to be
achieved through European and Eu- ro-Atlantic integration. So,
Albania seems more focused on issues of Europeaniza- tion by
avoiding any nationalistic approach and seek the solution of
Albanian issue within the framework of future membership in
NATO and EU.
Meanwhile, in the first survey regarding security threats and
NATO integration conducted by the Institute for Democracy and
Mediation (IDM) in April-May 2007 the respondents were asked to
rank threats as per the given risk evaluation scale rating from 1 to
6 (the highest number indicates the highest risk). They ranked
threats in the following order: corruption (4.6); poverty and
economic stagnation
32
For an analytical review of the document of national security strategy and

perceived threats see also: Sotiraq Hroni, Gjen.Let (in release) Pellumb Qazimi:
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View from Albania - Study on assessment of regional security threats and

challenges in the Western Balkans, in Study on the Assessment threats of Regional
Security and Challenges in the Western Balkans, Darko Istvam Gyarmati & Stancic
(eds.), DCAF (Geneva Center for the Democratic Control of Armed Forces), 2007, p.
57.
33
Kastriot Islami (former Albanian Foreign Minister 2003-2005) National Security

at the context of regional risks and threats (Proceedings of the International
Conference: On the development of the national security strategy, Tirana 21
September 2007, organized by IDM & DCAF), Publishing Houese, Toena, Tirana,
2007, page 26
23
(4.4); failure of democratic reforms (3.91); and organized crime

(3.64).34 These four elements were considered even more
dangerous for national security than external factors, like
terrorism, regional conflicts, and so on.
In this way, a clear definition of CRT at national, regional and
global level remains an incomplete structure, particularly within
the national security strategies documents. Only a map of risks
and threats, based on clear criteria, can help determining the
most holistic basic concept on national security and defense
strategies. Differentiation and prioritization of CRT should
necessary be associated with other aspects rather than traditional
security concepts such as state sovereignty, territorial integrity,
etc. Adhering to these concepts, the national security strategy
has lost the opportunity to be designed in the human security
framework depending on the importance that human security
presents in certain areas (i.e. food safety, environmental, social,
and political, road etc.).35
From the viewpoint of CRT classification, the both security
documents simply follow an order of geographical distribution of
risks (global, regional or local), however, each of them lacks a
definition of the scale and intensity of these in short, medium
and long term.
Instruments
Security
providing
The prevailing concept of a two track approach which links a

short and mid-term objective, such as EU/NATO membership, with
a long term position, such as respect of the rule of law, presents
fundamental element of the Albanian national security and military
strategy documents. Consequently, this concept tries to create
an environment of internal security (rule of law) by relying mainly
on external tools (NATO and EU accession). On the other hand,
taking into account the regional security challenges, the
documents paid a special attention to Albania as a factor which
produces and exports security through the implementation of
good neighborhood policy and regional dialogue. Through these
concepts, national security and defense strategies tried to adapt
to the principle of equal distance, especially in relation to the
nation and developments in former republics of Yu- goslavia
where ethnic Albanians live.
On the other hand, regarding security objectives in short, mid and
long terms, national security strategy showed certain
shortcomings. For example, the short and medium priority is
defined as long-term while the opposite should be true. This time
mistake is an evidence of the lack of detailed typology of risks
and threats,
Besnik Baka: Albania : Threats and perceptions of security CSHTJE T
SIGURIS/SECURITY ISSUES, Quarterly Journal , No 11 , Published by IDM
(Institute for Democracy and Mediation) , Tiran, 2009, pg 74-90
34
35
For the involvement of human security concept in a document of national

security strategy see Prof. Rexhep Mejdani (former President of the Republic of
Albania 1997-2002) in: Some thoughts on revising the document on national
security strategy publication: On the development of strategy national security
(Summary of proceedings of the International Conference: On the development of
the national security strategy, Tirana 21 September 2007, organized by IDM &
DCAF), Publishing Houese. Toena, Tirana, 2007, page 26); See also: Backgrounder
on human security in Albania, IDM, Tirana 2009, p. 60, which is the first paper
drafted by a group of experts at the IDM (Institute for Democracy and Media- tion)
in terms of human security concept
24

which must correspond to the precise provisions on how to cope
with them.36 The whole concept of security prevailing in the
document of national security strategy of Albania seems to be
trying to get clearly defined horizontally, but without a concrete
action model. In this way, part III and IV of NSS remains at the
level of risk assessment but the general framework of actions
(accompanied with the necessary tools and resources needed to
achieve the objectives) is overlooked. This could be considered a
common feature of national security strategies of the Western
Balkan states, which after a prolonged political and economic
transition, are changing their approach to security sector reform.
As Laszlo Polti highlights as regards their essential issue, meeting
the security perceptions, with the exception of modern
terminology and length, the level of these documents being
processed is at the initial stage.37
In the case of Albania, the process of design and implementation
of national security and defense strategies is generally developed
in accordance with specific assessments of the countrys
weight in the structure of regional and global security. This
somehow has led to predefined instruments that can be used
to achieve sustainable security in the country and abroad and
which are necessar- ily attached to the security providers, such as
NATO. According to the definition made in both documents, a set
of elements labeled as instruments of national power will
enable achievement of the countrys security. They include: a)
diplomacy; b) protection of public order and safety; c) financial
and economic policies; d) civil protection and health &
environment38.
Along with respective sub-elements they constitute a sequence
en-bloc which lacks a clear division between hard and soft
instruments of security, mainly imply- ing a combination of them.
Given the division of CRT at the local, regional and global level, it
is clear that the instruments used are not of the same prominence.
For example, the instruments of diplomacy and defence are more
prominent at the regional and global security level, unlike the local
level, where financial instruments of economic policy or
protection of public order and human safety take the lead.
Diplomacy is top ranking instrument and it coincides with the
objective of the Albanian government to act in a security
environment without use of force as an instrument achieving
security. This obviously implies the regional and global security
and relationship with other stakeholders and international actors.
Meanwhile, in paragraph 5 of national security strategy (NSS) it
is stated that the strategy supports the creation of a security
planning system by giving priority to achieving a concrete
outcome under the concept: Who does what, when, and in co-
36
In Chapter II: OBJECTIVES OF SECURITY (page 5) in Law No. 9322, dated

25.11.2004 On approval of the National Security Strategy of the Republic of
Albania (Official Journal No. 98, Year 2004, page
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6696).
37
Laszlo , Poti Assessment of the security of the Western Balkans and a

comparative analysis of the threat perception in the countries of the region Darko
Istvam Gyarmati & Stancic (eds.), DCAF (Geneva Center for the Democratic
Control of Armed Forces), 2007, p. 9-50)
38
Law No. 9322, dated 25.11.2004 On approval of the National Security Strategy
of the Republic of Albania (Official Journal No. 98, Year 2004, page 6697) and Law
No. 9858, at 27/12/2007 The adoption of the Military Strategy of the Republic of
Albania (Official Journal No. 184, Year 2007, page 5802)
25
operation with whom.39 Through this definition, the document of

national security strategy is attached to the concept focused more
on the producers rather than consumers of security sector.
Strategies
vs
Defense Review
Strategic
For the main political and institutional actors of the country,

periodical review of the fundamental security document of the
Republic of Albania, known as Na- tional Security Strategy is
necessary and legally obligatory40 . This review raises a lot of
concerns mainly due to the dynamics of the security environment
developments either at the local, regional or even global level.
Since 2007, Albanias strategic documents have not changed.
More frequent review of military strategy (2002, 2005, and 2007)
was accelerated due to prospective membership in NATO. The last
review of defense strategy document was conducted nearly two
years before Albania became a full-fledged member of NATO (3
April 2009). This document remains in effect and has not yet been
subject to any reviews since it also refers to the ministry of
defense strategy for the period from 2007 to 2013. It became an
important guiding document to the armed forces in an effort to
meet objectives foreseen in the strategic doctrinaire framework.
This later facilitated the invitation extended, at the Bucharest
Summit on 3 April 2008, to the Republic of Albania to become a
member of NATO.
Having completed the NATO membership phase and given the
fact that it became a full-fledged member of the Alliance,
Albania shall now undergo a new phase of development of its
defense strategy. In line with the strategy new concept Albania is
required to conduct a reassessment of its financial and human capacity as well as analysis of commitments arising from the
participation in NATO international missions.
Relation between Strategic Framework and Security
Sector Reform
The approval and review process of strategic and doctrinaire
framework of Alba- nia have also spurred reforms in the field of
security sector defining it as the main instrument for Euro-Atlantic
integration. In this way, Albania began walking much faster
towards NATO accession, rather than EU, due to the geopolitical
reasons. The so-called two speeds (two-track) approach
encouraged also a review process especially of military and
defense strategies. Thus, reforms in AAF (Albanian Armed Forces)
were prompted by the commitment of Albania to become a member of NATO, aiming to ensure not only its security in a troubled
region but also to further consolidate democracy through nonmilitary conditionality that derived from
the
so-called
Washingtons criteria. Given that Albania was among the first
countries that joined the Council of the North-Atlantic Cooperation,
in June 1992, and the Partnership for Peace Program in February
1994, there was also a need to adapt the goal for becoming a full
NATO membership by reviewing military and
39
40
Ibid p.2
Based on Law 9322, Ar. 84, November, 2004.
26

defense
strategies.41
Under the National Defense Strategy in April 2002, the Albanian
government approved the implementation of Partnership Goal
package which was part of a new plan called AAF Structure and
Implementation Plan for the period 2002-2010. NATO Membership
Action Plan (MAP mechanism) established a program that
supported assistance in reforming and restructuring the Albanian
armed forces, including: a) assistance in establishing conceptual
framework of the armed forces; b) beginning of a structural
reorganization of the army; c) management of specific problems
as ammunition etch.42 Almost all changes and reforms within the
AAF were the result of the goal to obtain NATO membership,
which was set as the primary objective in the area of security for
the Republic of Albania in NSS (2000, 2004) and NDS (2000, 2002;
2005; 2007).
The whole process of reforms within AAF was finalized with
Albania becoming full-fledged member of NATO Alliance during
the Bucharest Summit on 3-4 April
2008.43 The security sector reform within the Armed Forces,
stemming from the strategic and doctrinaire framework of
Albania, fostered the belief of Albania being de facto member of
NATO and had thus strengthened Albanias position as security
exporter through its participation in operations such as Iraqi
Freedom led by the US coalition forces, NATO/PfP International
Security Assistance Force (ISAF) mission in Afghanistan under
Turkish and Italian command, Operation ALTHEA in BosniaHerzegovina under German command and recently in the Central
African Republic and Chad (MINURCAT ) under French command.44
Within the region, the Albanian army remained a part of the
Multinational Peace Force for South-eastern Europe (MPFSEE).45
The purpose of this multilateral force is to prevent conflicts and
support peace, including peacekeeping, peacemaking, peace
building, and humanitarian interventions within and outside the
Balkans under the mandate
41
Law No. 7816, dated 20.04.1994 On ratification of the Framework Document

on Partnership for Peace between the Republic of Albania and North Atlantic
Treaty Organization-NATO North (Official Journal No. 6, Year 1994, Page 305)
42
Council of Minister Decision No. 763 dated 14.11.2007 On approval of the

Strategy of the Ministry of Defence Sector 2007-2013 (Official Journal, No. 174,
Year 2007, page 5332);
43
Resolution of the Parliament of Albania For Albania membership in NATO

(Official Journal No. 7, Year 2008, Page 197)
44
Decision of the Albanian Parliament No. 7, dated 15.10.2001 Albania Members of the wide Alliance against international terrorism (Official Journal No 4 7 Year 2001
Page1504);Law No. 8932, dated
25.07.2002 For deployment a security military force in Afghanistan within the
framework of the international coalition against terrorism ISAF (Official Journal No. 47, Year 2002, Page
1416; Law No. 9315,
dated 11.11.2004 For deployment of Albanian Peacekeeping company in Bosnia -
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Herzegovina to take
part in EU Operation ALTHEA (Official Journal No. 95, Year 2004, Page 6565);
Law No. 9927, dated
09/06/2008 The adoption of the normative act with the power of the Law No. 3,
at 28/05/2008 The
deployment in the Republic of Chad and Central African Republic of armed forces
company of Republic
of Albania to participate in Operation EUFOR / TCHAD / RCA EU (Official Journal
No102Year 2008, Page
4493
)
45
Law No. 8640, dated 13.07.2000 On ratification of the Second Additional

Protocol of Agreement
for the establishment Multinational Peace Force of the Southeast Europe (MPFSEE)
(Official Journal No.
22, Year 2000, Page 1080); Law No. 8816, dated 20/09/2001 for the ratification of
the Third Additional
Protocol of the Agreement of Multinational Peacekeeping Force of Southeast
Europe
(MPFSEE)
(Official Journal No. 47, Year 2001,
Page 1483)
27
of the UN, the OSCE or other international bodies. Since February

2007 SEEBRIG participated for 6 months in the NATO-led operation
in Afghanistan which was an operational test of its credibility.46
All these initiatives present an evidence of a stronger commitment
of Albanias security forces to become integrated and operational
within the structures of collective defence, not only globally but
also at the regional level.47 However, Albanias participation at the
Bucharest Summit on 3-4 April 2008, NATO puts it in front of the
other conditions of deepening the integration process of the armed
forces and security structures to a collective defence organization.
The new role of a country, as a member of NATO, requires
quantitative and qualitative changes in terms of internal and
external security challenges. This shall serve as an incentive to
Albania in further stages of adaptation of its strategic and
doctrinaire framework.
At the same time, national security strategy determines the
protection of public order and human safety as main instrument
for achieving the security. As a result, this prompted a reform,
particularly the reform within the State Police as it is one of the
main actors in the security sector. Since the 1997 riots, the
reforms of state police have been implemented under the EU
Police assistance missions.48 In this framework, the 1999 State
Police Law laid down the foundation for transforma- tion of state
police into a public service, taking into consideration previous
steps taken back in 1998 when Albanias Constitution separated
the police force from AAF.49 For the first time, this law also made
distinction between political and senior police leadership
introducing the posting of Police Director General. This steps
serves as another indicator of the reform developments.
Meanwhile, due to rising international pressure on the Albanian
government to fight organized crime and corruption, the state
initiated drafting of a set of strategies specifically targeted at the
improvement of police reform and increasing pub46
Law No. 9471, dated 06.02.2006 On approval of the normative act with the
power of the Law No.
5, dated 28.12.2004 For sending Albanian military personnel in the composition of
Staf SEEBRIGU-t in
support of peace mission (ISAF) in Afghanistan led by NATO (Official Journal No. 8,
Year 2006, Page 162.
47
Amb. Pellumb Qazimi Regional ownership on security issues CSHTJE T

SIGURIS/SECURITY ISSUES, Quarterly Journal , Nr 7, Published by IDM (Institute for
Democracy and Mediation), Tiran, 2008,
pg 25-35); Another evidence of such commitment of Albanian government to
regional cooperation it was even the Decision of Council of Ministers No. 134 dated
18.02.2005 On establishment of the Secretariat of the South-Eastern Europe
Defence Ministerial Coordination Committee of the (SEDM-CC and Politico-Military
Steering Committee of South-Eastern Europe (PMSC / MPFSEE) in Albania (Official
Journal No. 14, 2005, Page 542)
48
Law No. 8896, dated 16.05.2002 On ratification of the Memorandum of

Understanding between the Government of the Republic of Albania and the
European Community on the status of the Police Assistance EC (ECPA) in Albania
(Official Journal No. 25, Year 2002, Page 810); Law No. 9152, dated
06.11.2003 On ratification of the Memorandum of Understanding between the
Government of the Republic of Albania and the European Community on the Status
of the Police Assistance Mission of the European Community in Albania (PAMECA)
(Official Journal No. 100, Year 2003, Page 4301 )
49
Law No. 8553, dated 11.11.1999 On State Police (Official Journal No. 33,
Year 1999, Page 1280). When right wing collation came in power in July 2005 it
initiated a new one as Law No. 9749, dated
04.06.2007 On State Police (Official Journal No. 73, Year 2007, Page 2171). It
raised a lot of concerns among certain experts because there were allegations
that it was used to remove certain high rank police officers from their job
positions. However both laws were drafted and assisted by EU Police As- sistance
Mission
28

lic safety. Regarding security aspects in the field of public order
and combating organized crime, the strategic and doctrinaire
framework of Albania has been recently equipped with a set of
strategies adopted by the Albanian government.50
Conclusio
ns
In conclusion we can note that strategic framework on security
and defense, relying upon an appropriate assessment of human
and financial capacities, constitutes the right step towards
ensuring a safe environment in the country and beyond. At this
very historical moment, any strategic analysis may go through
traditional (or semi-traditional) aspects, particularly those of the
geo-economic field, show- ing potentially high level of stability and
greater opportunities for cross-border cooperation and foreign
investments. It is for this reason our diplomacy, based on the
fundamental document of our foreign policy (upcoming strategy of
national security), should be even more oriented towards the
economic and pragmatic realm. It should identify concrete
alliances, properly classify priorities (taking into account the
reality), identify geo-economic and geo-strategic position in
accordance with our national goals determined by the strategic
doctrinaire framework.
On the other hand, the strategic documents that include specific
strategies for security, defense and military, should be
harmonized among themselves and should go through a
transparent process of proper evaluation of CRT and subsequent
adjustments in accordance with the available resources and
security institutions in the country. That is why legal framework
exists. It facilitates activities and fills in the gaps in coordination
among state security institutions. In the case of Albania, one can
notice lack of coherence and an overlapping between the three
strategies: National Security Strategy, Defence Strategy, and
Military Strategy. They deal with the concept of national security
without a clear definition of the respective roles. We can also note
a lack of a model for evaluating the risks, threats, and challenges
coming either from local sources or from the international
environment. In this context, the strategic documents of Albania
have to be formulated in accordance with the clear timetable,
where risks and challenges need to be faced in short, mid, and
long terms.
50
Decision No. 674 dated 07/12/2001 for approval of the National Strategy to
Fight against Trafficking in Human Beings (official bulletin No. 59, Year 2001, Page
1859); Decision No. 292 dated 07.05.2004 On approval of the Strategy National
Anti - drug 2004-2010 (Official Bulletin No. 31, Year 2004, page
2539); Decision No. 171 dated 11.02.2005 On approval of the National Strategy
against Child Traffick- ing and Protection of Children Victims of Trafficking and an
additional CMD No. 8, dated 05.01.2002 On establishment of the State Committee
to Fight against Trafficking in Human Beings (Official Bulletin No. 21, Year 2005,
page 808); Decision No. 668 dated 29.09.2007 On approval of the National
Strategy Integrated Border Management Action Plan (Official Bulletin No. 147,
Year 2007, Page 4087);
A
L
B
A
NI
Decision No. 14, at 09/01/2008 On approval of the Public Order Sector Strategy and Plan
Enforcement
Action Strategy 2007-2013 State Police (Official Bulletin No. 5, Year 2008, Page 99); Decision
No. 522, at
23/04/2008 On approval of the National Action Plan for the Fight against trafficking in vehicles
motor
(Official Bulletin No. 72, Year 2008, Page 3156); Decision No. 1083, at 23/07/2008 To approve
the National Strategy to Fight against Trafficking in Human Beings 2008-2010 and Supplementary
Document
National Strategy for Combating Trafficking Children and the Protection of Children Victims of
Trafficking (Official Bulletin No. 131, Year 2008, Page 5775); Decision No. 1140, 30/07/2008 For
approval
at inter-sector Strategy to Fight against organized crime, trafficking and terrorism (Official
Bulletin No.
138, Year 2008, Page 6124)
29
Defining a strategic concept of defence and security (based on

power and weight Albania has as a regional and global actor),
remains a priority task for any strategic doctrinaire framework.
Due to Albanias membership in a collective defense organization,
such is NATO, it is more than important to assess all security
impacts, risks and benefits stemming from such engagement.
Due to the abovementioned reasons, the process of formulation,
design and implementation of the concept of national security
strategy should be developed in accordance with specific
assessments of the countrys weight in the global structure of
regional security. Albanias membership in NATO, obtained at the
Bu- charest Summit on 3-4 April 2009, brought new conditions in
the process of assessment of security threats. As a NATO
member country, Albania is now required to conduct quantitative
and qualitative changes as regards security challenges inside and
outside the country. This is because NATO membership puts
Albania in the new position of structural adjustments in the
security sector.
From the risk classification perspective, the national security
strategy should not simply follow geographic distribution (global,
regional or local), but within each of them it should determine the
degree of intensity and the ways to face them in short, medium
and long terms. Differentiation and prioritization of these risks
should necessary be associated with other aspects, rather than
the use of classical concepts such as the sovereignty, territorial
integrity, development of the rule of law, democratic institutions,
freedoms and human rights etc. In this way, the national security
strategy should be designed taking as spotlight an interlinked concept of human security depending on the importance that it
presents in certain areas (i.e. food, environmental, social,
political, road security etc.). 51 The so-called institutional triangle
(Parliament, Government, President) has to play the most
important role in achieving a stable security environment. Such
assumptions lead to a further legal clarification, by better
separating their roles within security field, in order to guarantee
and coordinate a sustainable performance of all relevant
institutions.
Regarding the process of drafting, approving, and reviewing
national security documents, the necessary amendments should
be made at the Albanian legislation, providing for a broad
participatory approach, including the civil society actors and
stakeholders. Also, the final version of these strategic documents
has to be approved by the Parliamentary Commission, through a
qualified majority vote and by setting a clear timetable to
periodically monitor and review the institutions responsible for its
implementation. Based on their competencies and procedures the
Commission can hold hearings with interest groups and
representatives of civil society, thus making this process more
inclusive and accountable.
Bearing in mind the recent political and economic developments in
Albania, every new strategic document of national security and
defense should pay a greater attention to critical infrastructure.

This infrastructure is growing rapidly, including, not only traditional
infrastructure (road tunnels, bridges, oil pipelines, dams) but also
networks of electronic databases, important for human security
(fingerprint,
51
See also: Backgrounder on human security in Albania, IDM, Tirana 2009, p.

60, which is the first paper drafted by a group of experts at the IDM (Institute for
Democracy and Mediation) in terms of human security concept
30

blood groups,
information).
fiscal
or
banking
Finally, taking into consideration the size, resources and problems

inherited from the past communist regime, as well as the long
transition period, it is important that Albania now moves towards
creation of a genuine concept and strategic doctrinaire framework
of national security focusing more on human security.
Bibliograp
hy
Arbana, L. (2003) Understanding Defence and Security In
Correlation to Civil Society and Media, Tirana: Albanian Institute
for International Studies.
Backgrounder on human
(2009) Tirana: IDM.
security
in
Albania.
Baka, B. (2009) Albania: Threats and perceptions of security,

Cshtje t Siguris/ Security Issues, vol. 11, pp. 74-90.
Caparini, M. (2004) Civil Society and Democratic Oversight
of the Security
Sector: A Preliminary Investigation, Working Paper No. 132,
Geneva: DCAF.
Cili, H. (2003) Security and Defence Civil Society and the
Media in Trapans, J. and Fluri, H, in Defence and Security
Sector Governance and Reform in South East Europe, Vol. 1 & 2,
Geneva: DCAF and Center for Civil-Military Relations. [26. 3.
2003
]
European Commission (2003), Albania stabilization report 2003,
Brussels, [Online], Available:
http://ec.europa.eu/enlargement/pdf/albania/com03_339_ en.pdf
Hroni, S. and Qazimi, P. (2007) View from Albania - Study on
assessment of regional security threats and challenges in the
Western Balkans, in Gyarmati,
I. and Stancic, D. (eds.) Study on the Assessment threats of
Regional Security and
Challenges in the Western Balkans,
Geneva: DCAF.
Matei, F. (2009) Combating against terrorism and organized
crime :Common approach of Southeast Europe Cshtje t
Siguris/Security Issues, vol. 14 , pp. 84111
.
Qazimi, P. (2008) Regional ownership on security issues,
A
L
B
A
NI
Cshtje t Siguris/ Security Issues, vol. 7, pg 25-35.

Vickers, M. and Pettifer, J. (1997) Albania: From Anarchy to a
Balkan Identity, London: Hurst & Company.
Watkins, A. (2007) NATO and Balkans: Model for a Wider
Integration, Cshtje t
Siguris/Security Issues, vol. 5, IDM (Institute for Democracy
and Mediation), pp.
4151.
31
No
Title
Category
Ch
R
Th
N
PN
P
Width
G
R
Source
1
Local and
regional crisis
2
Globalization
Sector
Protecting
+
Unstable
neighbourhood
Albania
NSS Military
+
+
Political
Albania
+
3
WMD
Proliferation
5
Ethnical
clashes
Terrorism
Regional crisis
Political
Geopolitics
NSS
Global economy
Economy
Albania
Science
+
+
Political
NSS
4
Organized
crime (all traffickingganized crime
and money laundry)
Remark
Terrorist groups
Albania
Criminal
Region
NMS and NDS

International
community
+
+ Organized crime
Criminal
Albania
NSS Region
+
Unstable
neighbourhood
Political
Albania
NDS Military
+
Terrorist groups Political
Albania NSS and NDS Ideological
Region
8
Spread of light
arms in population
hands
Religiou
s
Interna
onal
commu
ity
+
Political
Military
+
Public
All
9
Unstable neighbourhood
Albania
NMS and NSS
Albania
+ + + Weak state
Order Albania
Domestic transition
1
0
1
1
16
+
+
+
D
o
m
e
st
ic
in
st
a
bi
li
t
y
P
ol
it
ic
al
A
lb
a
ni
a
+
+
+
+
Do
m
es
tic
ref
or
m
pr
oc
es
se
s
Po
liti
ca
l
Alba
nia
+
+
+
+
Uns
tabl
e state
institut
ions
Public
order
Albani
a
15 Mines
+
+ Health care
Albania
NSS
+
+
+
+
Human
Albania
NDS
Tec
hnol
ogic
al
acci
dent
s
(am
mun
ition
sexpl
osio
ns)
14
Epi
de
mic
s
and
infections
+ Health care
Albania
+
Social
Attacks on information and communication networks

+
Critical Infrastructure (tunnels, damps, etc.)
+
+
+
Communications
Social
Albania
NMS
12 Natural disasters
+
+
+
+
+ Nature
Social
Albania
NSS
13
+
+
Social
NSS Region
Challenges, risks and

threats as defined by
strategic documents of
Albania

Sigurnosna Politika Na Balkanu Albanija

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Gunduliev venac 48

Security Policies in the

The online version of this article can be

Publisher: Belgrade Centre for Security Policy,

Citation: Enri Hide, Geron Kamberi. 2010. Security Policies in

and Predrag Petrovi, eds. Security Policies in the

Security Policies in the Western Balkans

Challenges the Republic of Albania is facing in the process of

existing state security policies. Until 2000 the Albanian Parliament

Such an approach was applied to the first series of strategic

Title of the strategy

Table 1: Strategic documents of

The first documents regarding national security and defense

Security Policies in the Western Balkans

Regarding the adoption of the strategic framework of military doctrines they

the National Military Strategy (NMS) (in 2002,

Regarding local key factors which have influenced the process of

initiatives such as the Stability Pact or the Stabilization and

Security Policies in the Western Balkans

Declaration of Albanian Parliament, 18/03/2004, On the resolution of

Law No. 8541, dated 21.10.1999 On ratification of the SECI (Southeastern

Florina Christiana ( Cris) Matei Combating against terrorism and organized

Within this framework, NSS (National Security Strategy) (2000,

Strategic documents on security and defense were supported by a

Amadeo Watkins NATO and Balkans:model for a wider integration CSHTJE T

Barry J. Ryan Development of EU security agenda: Security of Albania and

Jonida Hoxha Organized crime in Balkan as a serious threat to EU security

for Democracy and Mediation), Tiran, 2009, pg 122- 136.

Decision of Council of Ministers No. 317 dated 13.05.2005 On approval of the

Security Policies in the Western Balkans

Vickers. Miranda & Pettifer. James, Albania: From Anarchy to a Balkan

European Commission, Albania stabilization report 2003,

policies. There have been little or no expectations in the last

Arbana. Lora, Understanding Defence and Security In Correlation to Civil

European Commission, Albania, progress report 2008, Brussels 05.11.2008,

Arbana. Lora, Understanding Defense and Security In Correlation to Civil

Security Policies in the Western Balkans

In general, the process of drafting these documents remained an

Only in February 2006, began publishing a quarterly magazine for security

Responsibilities in the process of preparation and

10, 1998, Page 359);

Law No. 8671 dated 26.10.2000 On the powers and authorities of

Security Policies in the Western Balkans

The Defense Policy Council has been established as an advisory

Security Policies in the Western Balkans

The set of documents which belongs to the strategic policies

See, for more, Albanian newspapers during February-April, 2010.

Security Policies in the Western Balkans

For an analytical review of the document of national security strategy and

View from Albania - Study on assessment of regional security threats and

Kastriot Islami (former Albanian Foreign Minister 2003-2005) National Security

(4.4); failure of democratic reforms (3.91); and organized crime

The prevailing concept of a two track approach which links a

For the involvement of human security concept in a document of national

Security Policies in the Western Balkans

In Chapter II: OBJECTIVES OF SECURITY (page 5) in Law No. 9322, dated

Laszlo , Poti Assessment of the security of the Western Balkans and a

operation with whom.39 Through this definition, the document of

For the main political and institutional actors of the country,

Security Policies in the Western Balkans

Law No. 7816, dated 20.04.1994 On ratification of the Framework Document

Council of Minister Decision No. 763 dated 14.11.2007 On approval of the

Resolution of the Parliament of Albania For Albania membership in NATO